The Protection of Judicial Independence in Latin America, 19 U

University of Miami Law School University of Miami School of Law Institutional Repository University of Miami Inter-American Law Review 10-1-1987 The rP otection of Judicial Independence in Latin America Keith S. Rosenn University of Miami School of Law, [email protected] Follow this and additional works at: http://repository.law.miami.edu/umialr Part of the Judges Commons Recommended Citation Keith S. Rosenn, The Protection of Judicial Independence in Latin America, 19 U. Miami Inter-Am. L. Rev. 1 (1987) Available at: http://repository.law.miami.edu/umialr/vol19/iss1/2 This Article is brought to you for free and open access by University of Miami School of Law Institutional Repository. It has been accepted for inclusion in University of Miami Inter-American Law Review by an authorized editor of University of Miami School of Law Institutional Repository. For more information, please contact [email protected]. THE PROTECTION OF JUDICIAL INDEPENDENCE IN LATIN AMERICA* KEITH S. ROSENN** I. INTRODUCTION 2 II. DEFINING JUDICIAL INDEPENDENCE 3 1II. MEASURING JUDICIAL INDEPENDENCE 8 IV. LEGAL MEASURES GUARANTEEING JUDICIAL INDEPEN- DENCE 13 A. Measures to Protect the Integrity of Judicial Decisions 13 1. Guaranty of Noninterference With Judi- cial Proceedings 13 2. Jurisdictional Monopoly 14 3. Requiring a Reasoned Opinion 15 4. Requiring Public Trials 15 B. Measures to Protect Personal Independence 15 1. Irreducibility of Judicial Salaries 15 2. Guaranteeing the Judiciary a Fixed Per- centage of the Government's Budget 16 3. Tenure in Office 17 4. Selection and Reappointment Processes 19 5. Transferability of Judges 21 6. Avoidance of Conflicts of Interest 22 Revision of a paper presented at the XXVI Conference of the Inter-American Bar Association, Buenos Aires, Argentina, May 11, 1987, for Committee II Constitutional Law. ** B.A., Amherst College; LL.B., Yale University. Professor of Law, University of Miami School of Law. INTER-AMERICAN LAW REVIEW [Vol. 19:1 7. Judicial Immunity 22 V. FORMS OF INTERFERENCE WITH JUDICIAL INDEPEN- DENCE 23 A. Formal Abrogation of Judicial Independence 23 B. Bypassing the Ordinary Courts 24 C. Wholesale Dismissal of Judges 27 D. Transference of Reassignment of Judges 28 E. The Illusory Guaranty of Irreducible Salaries 29 F. Failure to Enforce Judicial Decisions 30 G. Executive Domination 31 VI. CONCLUSIONS 32 I. INTRODUCTION Latin American judiciaries have been criticized frequently for lacking independence.' Seldom, however, have the critics explained the meaning of the talismanic phrase "judicial independence," or the reasoning behind their determinations that a particular judiciary is independent or subservient. Almost never do the critics ex- plain why an independent judiciary is desirable. They apparently regard the proposition as self-evident. As Part IT of this essay dem- onstrates, judicial independence is a concept fraught with ambigui- ties and unexamined premises. Part III explains the futility of at- tempts to quantify judicial independence. Part IV explores legal measures that have been utilized in Latin America to attempt to insure judicial independence. Part V reviews the methods by which the independence of Latin American courts has been undermined. The essay concludes that formal constitutional guarantees of judicial independence have been largely ineffective in much of Latin America because of certain structural features of Latin American politics and legal institutions. Until there is a much greater com- mitment by governments and the governed to the principles of 1. See generally W.R. DUNCAN, LATIN AMERICAN POLITICS 152-53 (1976); A. EDELMANN, LATIN AMERICAN GOVERNMENT AND POLITICS 477-80 (1969); M. NEEDLER, LATIN AMERICAN POLITICS IN PERSPECTIVE 154-55 (1967); A. VON LAZAR, LATIN AMERICAN POLITICS AND DEVEL- OPMENT 66, 89 (H. Wiarda & H. Kline eds, 1979); Moreno, Justice and Law in Latin America: A Cuban Example, 12 J. INTER-Am. STUD. & WORLD AFF_ 367, 373-78 (1970). 19871 JUDICIAL INDEPENDENCE constitutionalism and the rule of law, lack of judicial independence will continue to plague Latin America. II. DEFINING JUDICIAL INDEPENDENCE What does judicial independence mean? A judiciary is independent from whom and independent of what? Why does it matter whether a judiciary is independent? Is an independent judiciary always better than a non-independent judiciary? Is judicial independence critical to insuring the observance of constitutional guarantees? To what extent is judicial independence a function of a court's ability to avoid deciding highly controversial cases? Is judicial independence measurable? Judicial independence is a relative rather than absolute concept. All judiciaries are to some extent independent and to some extent subservient.' Courts simply do not come packed like tennis balls, hermetically sealed from their environment. Regardless of whether they are popularly elected, appointed by some combina- tion of the executive, legislative or judicial branches, or selected by competitive examination, judges are likely to have a belief system that mirrors the dominant political culture. Surely, judicial independence does not require that judges re- main oblivious to all political considerations when deciding cases. Political factors, such as whether a nation is at war, whether grant- ing a requested remedy will indicate disrespect for a coordinate branch of government, or whether a problem is likely to be better resolved by the political processes, obviously do, and should, influ- ence the decisions of independent judiciaries. Moreover, one can even find independent judiciaries in authoritarian regimes. An in- triguing study of the Spanish judiciary under Generalissimo Franco revealed that the ordinary courts functioned with a high degree of independence, largely because politically sensitive cases were consistently diverted from the regular courts to special 2. This point was cogently made by Jerome Cohen, former Professor of Law at Harvard, regarding the judiciary in Communist China: Judicial independence is not something that simply exists or does not exist. Each country's political-judicial accommodation must be located along a spec- trum that only in theory ranges from a completely unfettered judiciary to one that is completely subservient. The actual situation in all countries lies some- where in between. Cohen, The Chinese Communist Party and "JudicialIndependence": 1949-1959, 82 HARV. L. REv. 967, 972 (1969). INTER-AMERICAN LAW REVIEW [Vol. 19:1 tribunals.' Judicial independence does not mean that judges are free to decide cases in accordance with their personal predilections. An independent judge need not sit like a kadi under a banana tree, dis- pensing justice as he or she sees fit. A judge is not expected to act independently of the law or in disregard of ethical considerations or the positions taken by counsel in the case at bar. An independent judiciary does not signify an irresponsible judiciary; judges have a responsibility to decide cases in accordance with preestab- lished rules of procedural and substantive law.' One of the most commonly cited definitions of judicial independence was proposed by Professor Theodore Becker: Judicial independence is (a) the degree to which judges believe they can decide and do decide consistent with their own personal attitudes, values, and conceptions of the judicial role (in their interpretation of the law), (b) in opposition to what others, who have or are believed to have political or judicial power, think about or desire in like matters, and (c) particularly when a decision adverse to the beliefs or desires of those with political or judicial power may bring some retribution on the judges per- sonally or on the power of the court.' Becker sets out the core concept of judicial independence, but his definition needs further refinement. One problem is that it simplis- tically amalgamates the principle of independence from political authorities with the complex issue of independence from other judges. Quite different considerations pertain when the issue is the independence of the judiciary as a corporate body rather than the internal independence of an individual judge from his judicial col- leagues. Courts in modern legal systems are typically arranged in hierarchical fashion. Lower court judges are expected or required to adhere to the decisions of higher courts for reasons of predict- ability, uniformity, and sound judicial administration. Even in countries that do not formally adhere to the doctrine of stare deci- sis, courts are almost invariably required to adhere to decisions of higher courts on remand.' Moreover, as a practical matter, lower 3. Toharia, Judicial Independence in an AuthoritarianRegime: The Case of Contem- porary Spain, 9 L. & Soc. REV. 475 (1975). 4. Eckhoff, Impartiality,Separation of Powers, and Judicial Independence, 9 SCANDI- NAVIAN STUD. IN L. 9, 17 (1965). 5. T. BECKER, COMPARATIVE JUDICIAL POLITICS 144 (1970). 6. One Latin American constitution specifically finds no incompatibility between the 19871 JUDICIAL INDEPENDENCE 5 courts generally follow decisions of the higher courts, and all levels of courts generally follow their own decisions.7 Literally applied, Becker's definition means that the only countries with truly independent judiciaries are those that permit judges to ignore decisions of higher courts. To be sure, one can find an occasional judge who feels that his independence would be compromised if he were obliged to follow decisions of a

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